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chapter 11 chapter 11 chapter 11 natural environment. Natural Environment Maintaining a clean and sustainable environment - - environment Maintaining a clean and sustainable and tidy as well as being a more healthy and diverse healthy a more and tidy as well as being to create a more attractive environment that is safe, clean that is safe, attractive environment a more to create

Natural Environment

Natural Environment

Introduction managed respecting the principles of . 11.1 The quality of our is determined, in large part, by the condition of our surrounding City Wide Environmental Characteristics environment. Enhancing and protecting Plymouth’s natural environment is critical to the city’s image, as 11.6 “It is one of the outstanding attractions well as bringing both social and economic benefits of planning for Plymouth that the seaboard of to its communities. To help understand how the city Devon ad Cornwall and the heights of Dartmoor has been shaped and what is important to protect, are included within its scope; the city is visibly the Council has commissioned a number of studies. and physically linked to our Coast and to one of our National . No other city in England 11.2 The task of the LDF is to build on this do these two precious possessions approach so evidence base, setting out positive policies that close; the privilege carries its responsibilities.” help protect and enhance the quality of the natural A Plan for Plymouth (1943). environment, promoting its contribution to the city’s No other city in England can claim to possess such regeneration. The following sections outline how this a rich and varied natural setting. will be delivered. 11.7 A reflection of this is in the number of national and international environmental designations within Context and adjacent to the city. In combination these factors make a very significant contribution to the National / Regional city’s image and the quality of of its citizens. Understanding, cherishing and enhancing this 11.3 National and Regional planning policy expects heritage is vital to the city’s successful regeneration. development and growth in Plymouth to preserve and enhance a variety of environmental assets and to protect the and qualities Landscape and Green of both the local and global environment. This is about enabling the city to be passed on to future 11.8 The city’s most valuable natural asset is its generations in a state which they too can enjoy and waterfront. The city has been shaped by its maritime benefit from. history and its future prosperity is equally dependant on how it capitalises upon this asset.

Sub-regional 11.9 If the area’s created a fine natural harbour and a dramatic landscape, it has also 11.4 Plymouth’s sub-region is unique with the city been a constraint on the city’s growth. Plymouth’s being surrounded by European and / or national topography, with its hills and valleys, makes protected landscapes and natural environments – movement difficult and often indirect, creating Dartmoor National , the Tamar Valley and South problems of legibility. The lack of historic settlement Devon Areas of Outstanding Natural Beauty and the in northern Plymouth testifies to the fact that it was Plymouth Sound European Marine Site. This feeling not a natural place for occupation. On the of quality permeates right to the heart of the city, other hand, the topography offers the opportunities creating strong bonds between town and country. of dramatic locations and views, which have not 11.5 Plymouth’s urban fringe is one of its most always been exploited. It also provides a distinctive immediate and accessible natural assets. It needs network of wooded valleys providing quality green to play a key role in the city’s regeneration, but not space between settlements, connecting town to to the detriment of the communities that live there. country and providing both a natural and recreational To achieve this we need to work closely with our . neighbours to ensure it becomes a place where 11.10 The city’s network of parks, natural green the many demands placed upon it complement and bodies are equally important. Not each other, and are effectively planned and only are they a vital visual, educational and cultural

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resource in their own right, providing definition along we continue to lose . Plymouth needs to transport corridors and between areas, but they also plays its role in protecting biodiversity as part of the make an invaluable contribution to the and urban renewal process - enhancing existing assets well-being of its citizens, as well as providing an and rebuilding what has previously been lost. ecological resource for the benefit of biodiversity. 11.15 Work to protect biodiversity must also have a 11.11 The LDF’s task must be to protect and broader focus than just rare and . enhance the city’s natural heritage and its unique We must recognise the educational, health and setting. Key to be addressed are: quality of life benefits that come from regular contact • Focusing new development within the urban with , and plan for accessible green spaces boundary will inevitably add pressure to that allow these benefits to be realised. these assets. The aim must be to protect these by managing them wisely, as well as providing an appropriate planning Future Provision – Accessible Natural framework for the coastal zone Greenspace • In terms of creating a legible townscape, a 11.16 Green spaces within towns are vital for lot of Plymouth’s northern development has providing people with regular contact with . paid little regard to the topography and as a English Nature strongly believes that: consequence, produces places which feel unnatural. New development needs to redress • everyday contact with nature is important for the balance well-being and quality of life • The goal must be not only to protect the • everyone should be able to enjoy this contact, city’s natural setting, but also to improve in safety, without having to make any special the physical and cultural links between effort or journey to do so townscape, coast and green space. • natural green space in towns and cities can play an important part in helping safeguard our national treasure of wildlife and geological Biodiversity and Geological features Conservation • accessible natural green spaces give everyone an excellent chance to learn about 11.12 The city’s landscapes are rich in biological nature and to help protect it in practical ways. and geological diversity. This is reflected in the range of international, national and local 11.17 English Nature’s Urban Greenspace designations, which includes the Plymouth Sound standards provide a set of benchmarks for ensuring and Estuaries European Marine Site, nine Sites access to places of wildlife interest. These standards of Scientific Interest (SSSIs), seven Local Nature recommend that people living in towns and cities Reserves (LNRs) and three proposed LNRs. should have: • An accessible natural green space less than 11.13 The city supports important areas of ancient 300 metres (5 minutes walk) from home , species rich , mudflat and • Statutory Local Nature Reserves at a rocky shore. Significant numbers of national rare minimum level of one hectare per thousand / declining species have been recorded including population Otter, Bats, Plymouth Pear, Cirl Bunting, • At least one accessible 20 hectare site within Eryngo, and Deptford Pink. two kilometres of home; one accessible 100 hectare site within five kilometres of home; 11.14 A key issue to be addressed is that not all of and one accessible 500 hectare site within ten this wildlife is secure within protected areas. The kilometres of home. city’s biodiversity and geological diversity is still threatened by inappropriate , 11.18 provision within the city against these fragmentation, development pressure and benchmarks is as follows: change. At a local, national and global level • 36% of the city is recognised as green space

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(Greenscape Assessment 2000). However, other ‘greenhouse ’ that are entering the the Greenscape Assessment identified . This is leading to a warming of the deficiencies in Keyham / Ford, St Judes, planet and changes to our climate. Mutley, City Centre. All these areas were is a major issue facing the , and Plymouth shown to have less than 7% green space must take steps to reduce the cause ( dioxide • Seven LNRs provide a total of 146 hectares emissions) and make plans to respond to the effects or 0.6 hectares per thousand population. ( level rise, increased flood risk). However, there is potential to designate 3 new LNRs (Ham Woods 35 ha, Plymstock Woods 11.23 Homes contribute one-third of the UK’s total 38 ha , and Cann Woods 20 ha) and extend emissions and when other buildings Bircham Valley (8ha) giving 101ha of new are factored in, the figure is closer to one half (Town LNR and Country Planning Association, 2006). If we are to meet the challenges of rising demand for , • The Mount Edgcumbe Country Park and and reduce our green house emissions, there National Trust estate at Plym Woods and is a need to move towards an urban environment Saltram also provides a significant green that demands less and that is supplied with space resource for the benefit of the city and sustainable energy sources. its sub-region. 11.24 We need to plan for development that will help 11.19 The South West Regional Biodiversity slow down the rate of, (but also be resilient to the Partnership has identified a range of targets effects of), climate change. In this respect the LDF’s in respect to the maintenance, restoration and task will be to: recreation priority habitat and species. These are expressed within RPG10, and a similar set of targets • Reduce consumption of natural and non are currently being refined for the draft RSS. These renewable resources targets include the above targets for urban green • Reduce to levels that do not damage space provision. natural systems • Help improve air quality 11.20 Plymouth has potential to contribute to • Reduce contributions, and adapt, to climate biodiversity targets in respect of LNRs, (see above) change and habitat restoration / recreation particularly as • Reduce the use of non and part of a Countryside Park Proposal, and new green promote renewable energy space provision as part of the Derriford /Seaton Area • Plan in the context of increased flood risk. Action Plan. 11.25 With reference to the need to minimise Plymouth’s carbon footprint, this can be achieved Climate Change and Resource Use in part by the promotion of renewable energy generation. Plymouth’s Renewable Energy Strategic 11.21 The quality of Plymouth’s local environment Viability Study (2007), indicates that the targets needs to be framed within a wider global picture. supporting the Strategic Objective 11 are both Globally we are consuming our natural resources necessary and achievable, providing policy CS20 (5) and altering our environment at an unprecedented is implemented and enforced. rate and scale. Plymouth’s eco footprint (Plymouth’s Eco Footprint – A First Step May 2005) indicates 11.26 This approach has a number of benefits. It: that we need 5 hectares of land to meet each • guarantees that energy efficiency measures Plymothian’s requirements for food, energy and are implemented first transport. As there is only 1.6 ha per person • does not bias markets towards a particular available on , this eco foot print is not sustainable and Plymouth needs to shift towards a more resource efficient future. • allows the builder to select the most cost effective means of meeting the target 11.22 Human activities around the globe are • provides greater flexibility that may be increasing the amount of carbon dioxide and required as a result of different site conditions

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• encourages the use of renewables 11.31 Development within these areas will therefore • provides clearer guidance on energy need to be informed by detailed Flood Risk efficiency requirements for developers. Assessments that demonstrate how it will make a positive contribution to reducing or managing 11.27 Where the specified requirements are not flood risk. This will involve a number of measures practically achievable on any major development, a including: planning obligation will be sought to secure savings • Locating vulnerable types of development to through the implementation of other local renewable avoid risk from flooding energy or energy efficiency schemes. Further • Raising floor and land levels guidance will be provided in the Planning Obligations • Improving capacity and effectiveness of SPD. drainage • Providing flood defences and flood warning Flood Risk measures.

11.28 As a city framed by the sea and two major systems, Plymouth needs to respond appropriately to the issue of flood risk. The Flood Risk Diagram 8 illustrates the distribution of land considered to be in the Environment Agency’s medium and high probability Flood Zone 2 and 3.

11.29 The risk of coastal and river flooding will increase as a result of the predicted effects of climate change, including rising sea level and increased winter rainfall. To achieve a programme of sustainable development Plymouth will need to adapt to this situation by taking steps to defend existing properties and direct new growth to areas with little or no risk of flooding.

11.30 The majority of development allocations in the LDF will be outside areas of medium to high probability of flooding. However, significant challenges exist with the need to deliver social and economic regeneration in Millbay, the City Centre and the East End, but also to respond appropriately in these areas to risk of flooding now and in the future. The Council’s Strategic Flood (2006) indicates that by 2080, in the absence of appropriate defences, sea level rise will result in annual flood events in these areas. Without appropriate mitigation measures, floods in these areas could be caused either directly by and waves and / or indirectly by sea level rise reducing the capacity of surface water drainage systems.

c/o Government Agency

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Approach • Promote development that reduces dependency upon the car 11.32 Everyone in Plymouth depends upon the • Responding to the threat of flooding through surrounding natural environment. It is the foundation the consideration of planning proposals in for our economic and social well-being. The City of a strategic flood risk assessment Vision will not be achieved without its effective • Reduce consumption of natural and non- stewardship. renewable resources.

11.33 To achieve this the Local Development Framework will: • Protect and enhance the green space and water space that are essential to the city’s setting and character • Ensure future development enhances the quality and accessibility of these green spaces - encouraging the creation of new landscapes, city greening initiatives and public parks • Recognise the importance of providing a ‘multi functional’ , that delivers a broad range of quality of life benefits (education, access, amenity, recreation, biodiversity) in line with ‘The Charter for Countryside and in Plymouth 2005’ • Protect, enhance and restore biological diversity in line with targets expressed within national, regional and local Biodiversity Action Plans • Ensure future development ‘designs in’ wildlife from an early stage • Respond to the threat of flooding through the planning of development proposals in the light of a strategic flood risk assessment • Recognise that effective protection and management of our coast and urban fringe requires a cross boundary / partnership approach to planning and delivery (e.g. Tamar Estuaries Consultative Forum).

11.34 The Council also recognises that to create and support ’sustainable communities’ there is an urgent need to plan for climate change, and limit the city’s ‘eco footprint’ by embracing design and technology that reduces our use of non-renewable resources.

11.35 To achieve this the Local Development Framework will: • Promote development that maximises energy efficiency and minimises CO2 emissions • Promote development that utilises low or zero carbon sustainable energy sources

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Strategic Objective and Policies

Strategic Objective 11 Delivering a Sustainable Environment To set a spatial planning framework through the LDF that supports the City Strategy goal to maintain a clean and sustainable environment, which benefits social and economic well-being. This will be through: 1. Safeguarding, enhancing, and promoting access to Plymouth’s green spaces and coastal environments that are of strategic importance in terms of defining the city’s character, supporting biodiversity, recreation and other benefits. 2. Safeguarding, enhancing and promoting access to green spaces that are of importance to the creation of sustainable linked communities. 3. Conserving and enhancing biodiversity having particular regard to the maintenance, restoration and re- creation of priority habitats and species. 4. Reducing the consumption of non-renewable sources e.g. fossil fuels, land, , and minerals in line with national and regional targets. 5. Promoting renewable energy and address the causes and potential impacts of climate change. 6. Minimising the loss of greenspace, ensuring that where greenspace is developed it achieves more significant sustainable development benefits relative to the function and importance of the greenspace. 7. Protecting people and the environment from pollution. 8. Managing flood risk in a sustainable manner consistent with other spatial planning objectives. 9. Supporting or engaging in partnerships with government agencies, neighbouring authorities and the voluntary sector that deliver an integrated approach to sustainable coastal and urban fringe planning.

Targets 1. To work towards ensuring that the city’s population have access to a natural green space within 300 metres of their home. (A specific target for 2021 will be set using the LDF Annual Monitoring Report once the baseline position in Plymouth is identified). 2. To facilitate designation of 100 hectares of new Local by 2016, and an additional 50 hectares by 2021. 3. To ensure that as a minimum development causes no net loss of biodiversity of acknowledged importance. 4. To review the Strategic Flood Risk Assessment on at least a five-yearly basis. 5. To ensure that all major new developments incorporate onsite renewable energy production equipment to off-set at least 10% of predicted carbon emissions for the period up to 2010, rising to 15% for the period 2010-2016.

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Policy CS18 Plymouth’s Green Space The Council will protect and support a diverse and multi-functional network of green space and waterscape, through: 1. Identifying in the Site Allocations Development Plan Document and Area Action Plans a network of strategically and locally important Greenscape Areas. Development on or adjacent to these Greenscape Areas will not be permitted where it would result in unacceptable conflict with the function(s) or characteristics of that area. 2. Requiring development proposals to improve the quality and quantity of accessible green space, where appropriate. 3. Requiring development proposals to address local deficiencies in accessible green space, where appropriate. 4. Using its planning powers to safeguard important trees and hedgerows, and to secure provision for soft landscaping where appropriate as part of development.

11.36 Plymouth contains a wealth of green spaces, 11.38 The policy will be implemented through: such as , parks, agricultural land, valleys, • Identifying Greenscape Sites in the estuaries and coastal areas. All such spaces Area Action Plans and Sustainable provide various benefits, including, biodiversity, Neighbourhoods (Key Site Allocations) DPD, visual amenity, sports and recreation. The aim of and through the consideration of planning the above policies is to ensure that the key strategic applications spaces are protected and enhanced, contributing • Provision of significant new areas of to the formation of sustainable linked communities. accessible green space, including new Strategic green space and coastal environments are Countryside Parks, will be proposed in of importance to the city as a whole in terms of their particular within North Plymstock AAP and character, biodiversity value, or recreation / sports Seaton Valley Park within Derriford / Seaton value. AAP • Production of a Green Space Strategy, which 11.37 Also important to quality of life and the will also deliver the draft RSS requirement for environment are smaller scale greenscape features a Green Infrastructure Plan. – even down to the individual tree or hedgerow. The Council will be proactive in protecting such features through Tree Preservation Orders or other application of its planning powers. Development proposals should also bring forward landscaping schemes that protect existing landscape features and deliver environmental improvements appropriate to the location of the scheme and the function and scale of the development.

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Policy CS19 Wildlife The Council will promote effective stewardship of the city’s wildlife through: 1. Safeguarding national and international protected sites for from inappropriate development. 2. Appropriate consideration being given to European and nationally protected and important species. 3. Maintaining a citywide network of local wildlife sites and wildlife corridors, links and stepping stones between areas of natural green space. 4. Ensuring that development retains, protects and enhances features of biological or geological interest, and provides for the appropriate management of these features. 5. Ensuring development seeks to produce a net gain in biodiversity by designing in wildlife, and ensuring any unavoidable impacts are appropriately mitigated for. 6. Supporting wildlife enhancements which contribute to the habitat restoration targets set out in the South West Nature Map and in National, Regional and Local Biodiversity Action Plans.

11.39 This policy is primarily about conserving and 11.40 This policy will be implemented through enhancing the city’s wildlife, including in inter-tidal specific wildlife policies and proposals in relevant or sub-tidal locations, and supporting a richness Area Action Plans, and using the planning of biodiversity that will underpin the creation of application process to positively bring about sustainable neighbourhoods. The spatial distribution development which supports the wildlife policy. The of this hierarchy of important nature conservation Council’s Planning Guidance Note on ‘Wildlife and sites is illustrated in Diagram 7. It recognises the Development’ provides further amplification of how it importance of protecting the assets found within the will seek to encourage wildlife friendly development. statutorily designated sites and species, but also This will be updated in the Design SPD. Additionally, the need to view biodiversity enhancement as a the Tamar Estuaries Management Plan, and Local cross cutting opportunity in all development. Certain Nature Reserve Management Plans are relevant to developments may be required to submit an impact the promotion of biodiversity in the city. assessment to quantify the effect on biodiversity and inform design and mitigation measures. Development proposals need to consider protected species at an early stage. Where development adversely affects biodiversity interest, negative impacts should be minimised and compensation to offset these impacts should be provided. SNAs (identified on SW Nature Map) should also be recognised as one of a number of tools to inform Biodiversity restoration and recreation.

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Policy CS20 Sustainable Resource Use The Council will actively promote development which utilises natural resources in as an efficient and sustainable a way as possible. This will include: 1. Meeting high water efficiency standards, and incorporating new to recycle and conserve . 2. Promoting the use of Sustainable Urban Drainage Schemes. 3. Requiring all proposals for non-residential developments exceeding 1,000 square metres of gross floorspace, and new residential developments comprising 10 or more units (whether new build or conversion) to incorporate onsite renewable energy production equipment to off-set at least 10% of predicted carbon emissions for the period up to 2010, rising to 15% for the period 2010-2016. 4. Ensuring building design reduces energy consumption by appropriate methods such as high standards of insulation, avoiding development in areas subject to significant effects from shadow, and frost, using natural lighting and ventilation, capturing the sun’s heat, where appropriate. 5. Supporting development that minimises the consumption and extraction of minerals by making the greatest possible or of materials in new construction, and by making best use of existing buildings and infrastructure. 6. Supporting development that seeks to minimise waste and facilitates recycling. 7. Ensuring that development and in the ‘coastal zone’ responds appropriately to the character of the particular type of coast, in the interests of preserving and making best use of this limited resource.

11.41 This policy aims to reduce the size of the city’s ecological footprint, reduce the causes of climate change, and shift Plymouth towards a more resource efficient future.

11.42 The policy will be implemented through specific resource use policies and proposals in relevant Area Action Plans, and through the planning application process. It will be amplified through a Supplementary Planning Document.

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Policy CS21 Flood Risk The Council will support development proposals that avoid areas of current or future flood risk, and which do not increase the risk of flooding elsewhere. This will involve a risk based sequential approach to determining the suitability of land for development. Development in high risk flood areas will only be permitted where it meets the following prerequisites: 1. It can be demonstrated that the development provides wider benefits to the that outweigh flood risk. 2. The development should be on previously developed land; if not, there must be no reasonable alternative sites on developable previously developed land. 3. A flood risk assessment has demonstrated that the development will be safe, without increasing flood risk elsewhere. In addition development will be required to incorporate Sustainable Urban Drainage Systems (SUDS) to manage surface water drainage. The Council will also seek to reduce the increase in flood risk due to climate change through measures to reduce carbon dioxide emissions

11.43 This policy is needed to safeguard people 11.45 The policy will be implemented in the following and property from the risks of flooding. The risks of ways: flooding in Plymouth are forecasted to increase due • Identification of specific policies and to climate change. proposals to reduce flood risk as part of North Plymstock, East End and Millbay and 11.44 Flood risk in certain areas of the city is Stonehouse AAPs increased by the current lack of capacity within • Development within these areas will the existing drainage infrastructure. SUDS are therefore need to be informed by Level 2 designed to limit the flooding and pollution problems Strategic Flood Risk Assessments, and associated with conventional drainage schemes, development based Flood Risk Assessment, although they also have a part to play in reducing that demonstrate how it will make a positive flood risk to and from new development. They are contribution to reducing or managing flood made up of one or more structures built to manage risk. This will include a number of measures surface water runoff and can include green roofs, to ensure that: (i) the development is zoned filter strips and swales, infiltration devices and to ensure the most vulnerable development basins or . SUDS can be designed to function types are avoided; (ii) drainage infrastructure in most urban settings, from hard-surfaced areas to is increased; (iii) flood defences and flood soft landscaped features. warning measures are increased; (iv) flood resistant or resilient design.

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Policy CS22 Pollution To protect people and the environment from unsafe, unhealthy and polluted environments through: 1. Ensuring development proposals will be refused which cause unacceptable noise, nuisance or light pollution. 2. Ensuring development causes no unacceptable impact on water or air quality.

11.46 The control and prevention of pollution is given high priority due to the negative impact it can have on human health, quality of life and the natural environment. This policy aims to protect our environment from the introduction of polluting activities or developments. Pollution could take the form of , fumes, smoke, , ash, grit litter, noise, vibration, light, heat, odour and liquid discharges. There are currently two Air Quality Management Areas (AQMA) designated in the city, one at Mutley Plain and one at Exeter Street, both of which result from traffic pollution. These are issues which also will be tackled through the city Local Transport Plan. The East End AAP will need to address the impact of development and road schemes on traffic pollution with the objective of reducing . Transport and development proposals in the Site Allocations DPD will need to have regard to the same objectives in Mutley Plain.

11.47 The policy will be implemented in the following ways: • Control of development • Promotion of Environment Agencies Pollution Prevention Guidelines • Designated and potential AQMA’s to addressed in relevant AAP’s and DPD’s.

Key Sources: • Greenscape Assessment, (2000 and 2004) - Land Use Consultants • Eastern Corridor Urban Fringe Study (2006) – LDA Design • Plymouth Biodiversity Database - held in Devon Biodiversity Records Centre • Plymouth Strategic Flood Risk Assessment (2006) - Pell Frischmann • Tamar Estuaries Management Plan 2006-2012 - TECF • The Charter for Countryside and Seas around Plymouth (2005) • Plymouth’s Eco Footprint – A First Step (2005) – City Council • Climate Change – The Impacts and Implications for Plymouth, 2004 – City Council • Plymouth Renewable Energy Strategic Viability Study 2007 – Centre for Sustainable Energy

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Diagram 7 - Natural Environment

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Diagram 8 - Flood Risk

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